REPORT 



OF THE 



School Book 
Investigating Committee 



TO THE 



General Assembly 



OF 



Georgia 



1914 






MAY 27 1914 



1 \ 



RLPORT 



OF THE 



5CHOOL BOOK 
INVL5TIGATING 
COMMITTLL 



M. L. BRITTAIN, 

State Superintendent of Schools, Chairman 

Hon. A. H. FOSTER. 

Senator, 27th District, Vice-Chairman 

Hon. JOHN T. PEYTON. 

Senator, Slst District 

Hon. C. R. McCRORY, 

Representative, Schley County 

Hon. H. C. SHUPTRINE, 

Representative, Chatham County 

Hon. W. J. NUNNALLY. 

Representative, Floyd County 

Dr. G. R. GLENN. 

Member State Board of Education 

Dr. T. J. WOOFTER. 

Member State Boavd of Education 



REPORT OF THE SCHOOL BOOK INVESTIGATING 
COMMITTEE 



To the Members of the General Assembly of Georgia: 

Gentlemen: The following resolution, known as House 
Resolution No. 17, was approved August 18, 1913 : 

"Whereas, The contract for school books for the public 
schools of Georgia expires this year, and, 

"Whereas, It appears that the present prices paid for school 
books are exorbitant when compared to the prices of other school 
books, 

"Be it resolved therefore by the House of Representatives, 
the Senate concurring, That a joint committee of eight, composed 
of the State Superintendent of Schools and two other members 
of the State Board of Education, in addition to said Superin- 
tendent, to be selected by said Board, who, together with two 
members of the Senate, appointed by the President of the Sen- 
ate, and three members of the House, appointed by the Speaker 
of the House, shall be a committee to inquire into and report 
as soon as practicable on the reasonableness of the present price 
of school books, and inquire into the prices of books used else- 
where, and also as to the practicability of the State furnishing 
school books for use in the public schools at cost of publication, 
and to make all investigation that may be necessary touching 
upon the furnishing of all books used in the Common and High 
Schools receiving State aid at cost of publication, and delivery 
of the same. 

"Be it further resolved, That said Committee is hereby 
clothed with authority to subpoena witnesses, to take evidence, 
to employ a stenographer, and compel the production of docu- 
ments and do such other acts as are necessary for this inves- 
tigation. 

"Be it further resolved. That said Committee shall make a 
report of its investigation, together with the testimony thereof, 



to the present session of the General Assembly, provided the 
investigation shall be concluded in time to render such report 
at the present session of the General Assembly. If the report, 
together with the testimony thereof, be not rendered to the 
present session of the General Assembly, then such report, to- 
gether with the testimony thereof, shall be made at the next 
regular session of the General Assembly. 

"Be it further resolved. That said Committee is authorized 
to sit at such times and places as said Committee may direct, 
and if said investigation is not concluded before the adjourn- 
ment of the present session of the General Assembly, then the 
members of said Committee, except the State Superintendent 
and two other members of the Board of Education selected by 
said Board, shall receive each a per diem of four dollars arid 
actual necessary expenses incurred in this investigation, except 
while the Legislature is in session, which shall be sworn to, and 
when approved by the Chairman and Vice-Chairman of the 
Committee, said per diem and expenses shall be paid out of any 
fund in the State Treasury not otherwise appropriated. 

*'Be it further resolved, That the State Board of Education 
or School Book Commission is hereby authorized to make new 
contracts, or in its discretion renew the present contracts for 
school books for five years at the regular time, as provided by 
law this year, with the proviso that said contract can be abro- 
gated as to any adoption after twelve months' notice to the 
publishers of said book or books. 

"Be it further resolved. That all laws and parts of laws in 
conflict with this resolution be, and the same are, hereby re- 
pealed." 

ORGANIZATION 

The two members selected by the State Board of Education 
in accordance with the resolution were G. R. Glenn and 
T. J, Woofter. The first meeting of the Committee appointed 
was held at the office of the State Department of Education 
on September 26, 1913. M. L. Brittain was elected Chairman 
and A. H. Foster, Viee-Chairman. In accordance with the pro- 
vision for an official stenographer, J. A. Northcutt was chosen 



for this work. In addition to the one mentioned, meetings have 
been held at the State Department of Education on the follow- 
ing dates: January 21, 1914; April 3, 1914, and April 28, 
1914. As set forth in the resolution, we have made diligent 
effort to inquire into the present prices of school books used 
elsewhere, the practicability of the State furnishing school books 
used in the public schools at cost of publication, and have en- 
deavored to secure all information possible concerning the fur- 
nishing of books used in the Common and High Schools of the 
State at cost of publication and delivery. The minutes of these 
various meetings, together with all books, pamphlets and corre- 
spondence are on file at the State Department of Education, and 
this material is accessible at any and all times to any member of 
•the General Assembly who may desire to inspect the original 
documents. 

COMPARATIVE PRICES 

One of the first duties placed upon the Committee was to 
report upon the prices of books used elsewhere in order to be 
able to make comparison with the prices paid in Georgia. 
With this end in view, letters were written to all of the States 
of the Union, and countries abroad in addition. The statement 
having been circulated that "most of the leading countries of 
Europe publish their own books and deposit them where 
the users can secure them at the least expense," the United 
States Bureau of Education was consulted. In a letter dated 
April 14, 1914, Professor Smith, the specialist in Foreign Ed- 
ucational Systems, writes, "In European Countries, in general, 
text books are prepared by professors, teachers, and others en- 
gaged in the work of education and are placed on the market by 
publishing houses practically in the same way as in this coun- 
try." Comparison as to prices could not be made in some of 
the States by reason of the fact that in them full liberty as to 
adoption and purchase is given to local authorities and parents. 
Conditions have, however, enough similarity to our own in 21 
other States to enable us to tell as to whether or not we pay 
extravagant prices for our school books. These use practically 
our texts for the required basal books in the common schools and 



where the number varies, this fact is indicated. The list below 
is presented in alphabetical order : 



Comparative Cost of the Required Basal School 
Books Used in the Grades Below the High 
School in 21 States Having Uniform 
Text Book Adoption 



ALABAMA. 



Primer $ .22 

First Header 20 

Second Reader 25 

Third Reader 30 

Fourth Reader 35 

Fifth Reader 40 

Arithmetic, 4 books 1.24 

Grammar, 3 books 1.09 

Total, $9.85; note that this state has 4 texts in Arithmetic, 3 in 
Grammar, 2 in Physiology, and 6 in "Writing. 



Geography, 2 books $1.28 

History, 3 books 1.80 

Agriculture 60 

Physiology, 2 books 86 

Civics 55 

Spelling, 2 books 41 

Writing, 6 books 30 



ARIZONA. 



Primer $ .30 

First Reader 25 

Second Reader 35 

Third Reader 40 

Fourth Reader 40 

Fifth Reader 40 

Arithmetic, 2 books 1.10 

Grammar, 3 books 1.45 

Total, $9.95; note that this state has no text in Agriculture nor Civics 
and only 2 in History, but there are 3 in Grammar and 2 in Physiology. 



Geography, 2 books $1.75 

History, 2 books 1.50 

Agriculture, no text 

Physiology, 2 books 1.05 

Civics, no text 

Spelling, 2 books 55 

Writing 45 



FLORIDA. 



Primer $ .25 

First Reader 25 

Second Reader .35 

Third Reader 45 

Fourth Reader 45 

Fifth Reader 55 

Arithmetic, 3 books 1.09 

Grammar, 2 books 71 

Total, $10.10; note that this State has 3 texts in Arithmetic, 3 in 
Physiology, 9 in Writing, and 1 Speller. 



Geography, 2 books $ 1.28 

History, 3 books 1.64 

Agriculture 60 

Physiology, 3 books 1.35 

Civics 50 

Spelling 18 

Writing, 9 books 45 



6 



GEOBGIA. 

Primer $ .14 

First Eeader 16 

Second Eeader 18 

Third Eeader 25 

Fourth Eeader 40 

Fifth Eeader 40 

Arithmetic, 2 books 55 

Grammar, 2 books 76 

Total, $7.90. 

IDAHO. 

Primer $ .30 

First Eeader 35 

Second Eeader 40 

Third Eeader 45 

Fourth Eeader 50 

Fifth Eeader 60 

Arithmetic, 2 books 95 

Grammar, 3 books 1.55 

Total, $10.09; note that this state has no text in Agriculture, only 
1 in History, and 1 in Spelling, but there are 3 in Grammar and 2 in 
Physiology. 

INDIANA. 



Geography, 2 books $ 1.28 

History, 3 books 1.70 

Agriculture 55 

Physiology 50 

Civics 44 

Spelling, 2 books 24 

Writing, 7 books 35 



Geography, 2 books $1.75 

History LOO 

Agriculture, no text 

Physiology, 2 books 1.10 

Civics 54 

Spelling 20 

Writing 40 



Primer .' . $ .15 

First Eeader 15 

Second Eeader 20 

Third Eeader 25 

Fourth Eeader 30 

Fifth Eeader 40 

Arithmetic, 2 books 95 

Grammar, 2 books 65 

Total, $5.85; this State has no text in Agriculture nor Civics, only 
1 in Geography, 1 in History, 1 in Spelling, and 5 in Writing, but 
these are 2 texts in Physiology. Books' are bought at wholesale by the 
Boards of Education. 

KANSAS. 



Geography $ .90 

History 75 

Agriculture, no text 

Physiology, 2 books 80 

Civics, no text 

Spelling 10 

Writing, 5 books 25 



Primer $ .12 

First Eeader 10 

Second Reader 17 

Third Eeader 23 

Fourth Eeader 30 

Fifth Eeader 40 

Arithmetic, 3 books 80 

Grammar, 2 books 55 

Total, $5.57; 10 per cent, is added to this price by the dealers. Note 
that there is no text in Agriculture, only 1 in History, 1 in Spelling; 
but there are 8 in writing and 3 in Arithmetic. 



Geography, 2 books $1.05 

History 50 

Agriculture, no text 

Civics 40 

Spelling 10 

Writing, 8 books 40 

Physiology 45 



KENTUCKY. 



Primer $ .10 

First Eeader 12 

Second Eeader 20 

Third Eeader 20 

Fourth Eeader 35 

Fifth Eeader 45 

Arithmetic, 4 books 98 

Grammar, 4 books 1.65 

Total, $8.82; this State has no text in Agriculture and only 1 in 
Spelling, but there are 4 in Arithmetic and 4 in Grammar. 

LOUISIANA. 



Geography, 2 books $1.20 

History, 3 books 1.75 

Agriculture, no text 

Physiology, 2 books 90 

Civics 45 

Spelling 12 

Writing, 7 books 35 



Primer $ .25 

First Eeader 25 

Second Eeader 35 

Third Eeader 35 

Fourth Eeader 35 

Fifth Eeader 40 

Arithmetic, 4 books 1.01 

Grammar, 2 books 62 

Total, $9.94; this State has 4 texts in Arithmetic, 3 in Grammar, 2 in 
Physiology, and 8 in Writing but only 1 in Spelling. 

MISSISSIPPI. 



Geography, 2 books $1.28 

History, 4 books 2.50 

Agriculture 60 

Physiology, 2 books 80 

Civics 60 

Spelling 18 

Writing, 8 books 40 



Primer $ .20 

First Eeader 23 

Second Eeader 32 

Third Eeader 36 

Fourth Eeader 30 

Fifth Eeader 40 

Arithmetic, 4 books 1.26 

Grammar, 3 books 87 

Total, $9.54; this State has 4 texts in Arithmetic, 3 in Grammar, 2 
in Physiology, and 8 in Writing. 



Geography, 2 books ...$1.28 

History, 3 books 1.70 

Agriculture 60 

Physiology, 2 books 82 

Civics 54 

Spelling, 2 books 26 

Writing, 8 books 40 



MONTANA. 



Primer $ .30 

First Eeader 30 

Second Eeader 30 

Third Eeader 40 

Fourth Eeader 50- 

Fifth Eeader 50 

Arithmetic, 3 books 1.15 

Grammar, 2 books 90 

Total, $10.65; this State has no text in Agriculture, only 2 in History, 
and 1 in Spelling, but it has 3 in Arithmetic and 2 in Physiology. 



Geography, 2 books $1.80 

History, 2 books 1.55 

Agriculture, no text 

Physiology, 2 books 1.10 

Civics 65 

Spelling 25 

Writing, 8 books 95 



8 



NEVADA. 

Primer $ .30 

First Eeader 30 

Second Eeader 35 

Third Reader 50 

Fourth Eeader 50 

Fifth Reader 50 

Arithmetic, 2 books 1.00 

Grammar, 2 books 1.15 

Total, $10.65; this State has no text in Agriculture nor Civics, only 2 
in History, and 1 in Spelling. 



Geography, 2 books $ 2.00 

History, 2 books 1.80 

Agriculture, no text 

Physiology 75 

Civics, no text 

Spelling .30 

Writing 1 20 



NEW MEXICO. 

Primer $ .20 

First Eeader .25 

Second Eeader 35 

Third Eeader 40 

Fourth Eeader 40 

Fifth Eeader 40 

Arithmetic, 2 books 92 

Grammar, 4 books 1.75 

Total, $10.42; this State has no text in Agriculture, but has 4 in 
Grammar, 2 in Physiology, and 8 in Writing. 



Geography, 2 books $ .95 

History, 3 books 2.35 

Agriculture, no text 

Physiology, 2 books 85 

Civics 75 

Spelling, 2 books 45 

Writing, 8 books 40 



NORTH CAROLINA, 



Primer $ .25 

First Eeader 25 

Second Eeader 27 

Third Eeader 32 

Fourth Eeader 32 

Fifth Eeader 36 

Arithmetic, 3 books 1.09 

Grammar, 2 books 70 

Total, $8.97; this State has only 2 texts in History but there are 3 in 
Arithmetic. 



Geography, 2 books $1.35 

History, E books 1.55 

Agriculture 60 

Physiology 55 

Civics 60 

Spelling, 2 books 41 

Writing, 7 books 35 



OKLAHOMA. 



Primer .' $ .25 

First Eeader 25 

Second Eeader 35 

Third Eeader .45 

Fourth Eeader 45 

Fifth Eeader 55 

Arithmetic, 2 books 70 

Grammar, 2 books 89 

Total, $8.20; this State has no text in Civics, only 1 in History, and 1 
in Spelling; but there are 2 in Physiology and 8 in Writing. 



Geography, 2 books $1.31 

History 90 

Agriculture 60 

Physiology, 2 books 90 

Civics, no text 

Spelling 20 

Writing, 8 books 40 



OREGON. 



Primer $ .25 

First Reader 25 

Second Eeader 35 

Third Eeader 45 

Fourth Eeader 45 

Fifth Eeader bo 

Arithmetic, 2 books 93 

Grammar, 2 books 81 

Total, $9.52; this State has only 



Geography $1.00 

History, 2 books 1.50 

Agriculture 70 

Physiology, 2 books 95 

Civics 65 

Spelling 23 

Writing 45 

1 text in Geography, 1 in Spelling, 



and 2 in History, but has 2 in Physiology. 



SOUTH CAROLINA. 



Primer $ .25 

First Eeader 25 

Second Eeader 25 

Third Reader 30 

Fourth Eeader 35 

Fifth Reader 35 

Arithmetic, 2 books 76 

Arithmetic, 2 books 68 

Total, $8.68; this State has 2 texts in Physiology but only 1 in 
Spelling. 

TENNESSEE. 



Geography, 2 books $ 1.33 

History, 3 books 1.60 

Agriculture 60 

Physiology, 2 books 75 

Civics 60 

Spelling 26 

Writing, 7 books 35 



Primer $ .25 

First Eeader 18 

Second Reader 25 

Third Eeader 30 

Fourth Eeader 35 

Fifth Eeader 40 

Arithmetic, 3 books 84 

Grammar, 3 books 1.08 

. Total, $9.09; this State has 3 

In Physiology, and only 1 in Spelling. 



Geography, 2 books $1.28 

History, 3 books 1.85 

Agriculture 60 

Physiology, 2 books 63 

Civics o5 

Spelling 18 

Writing, 7 books 35 

texts in Arithmetic, 3 in Grammar, 2 



TEXAS. 



Primer $ .18 

First Reader 18 

Second Reader 25 

Third Reader 30 

Fourth Reader 35 

Fifth Reader 40 

Arithmetic, 4 books 1.16 

Grammar, 3 books 1.02 

Total, $11.83; this State has 4 texts in Arithmetic, 3 in Grammar, 3 in 
AgTiculture, 3 in Physiology, 8 in Writing, but only 1 in Spelling. 



Geography, 2 books $1.36 

History, 3 books 1.60 

Agriculture, 3 books 2.10 

Physiology, 3 books 1.60 

Civics 75 

Spelling 18 

Writing, 8 books 40 



10 



Geography, 7 books $3.55 

History, 5 books 3.55 

Agriculture 75 

Physiology, 5 books 2.35 

Spelling 20 

Civics, 2 books 1.50 

Arithmetic, 3 books 1.20 



UTAH. 

:?rimer $ .25 

First Eeader 2o 

Second Eeader 35 

Third Eeader io 

Fourth Eeader 48 

Fifth Eeader 48 

Writing, 8 books 40 

Grammar, 3 books 1.65 

Total, $17.41; this State has 3 texts in Arithmetic, 3 in Grammar, 7- 
in Geography, 5 in History, 5 in Physiology, 2 in Civics, and only 1 in 
Spelling. 

VIRGINIA. 

Primer .$ .18 

First Eeader 15 

Second Eeader 22 

Third Eeader '. . .28 

Fourth Eeader 30 

Fifth Eeader 30 

Arithmetic, 2 books 66 

Grammar, 2 books 52 

Total, 9.79; this State has 5 texts in History, 3 in Physiology, and 
8 in Writing but has only 1 in Spelling, 



Geography, 2 books $1.28 

History, 5 books 2.75 

Agriculture 60 

Physiology, 3 books 1.40 

Civics 55 

Spelling 20 

Writing, 8 books 40 



WEST VIRGINIA. 



Geography, 2 books $1.28 

History, 4 books 3.81 

Agriculture 60 

Physiology, 2 books 1.15 

Civics 53 

Spelling 22 

Writing, 9 books 45 



Primer 25 

First Eeader 25 

Second Eeader 31 

Third Eeader 41 

Fourth Eeader 41 

Fifth Eeader 41 

Arithmetic, 3 books 1.05 

Grammar, 2 books 84 

Total, $11.97; this State has 3 texts in Arithmetic, 4 in History, 2 
in Physiology, 9 in Writing, and only 1 in Spelling. 

The foregoing evidence clearly proves that, in comparison 
with the other States like situated, our people do not pay ex- 
travagant prices for these books. It appears, for instance, that 
every neighboring southern State pays more than Georgia for 
these texts; so far then as concerns the prices recently secured 
by the Georgia State Textbook Commission it is evident that they 
not only are not extravagant but are more economical than those 
secured by other Boards using the plan of uniform State adop- 
tion. 

11 



ANNUAL EXPENSE OF BOOKS 

Perhaps, also, it is due the General Assembly to give the 
results of our effort to find, approximately at least, about the 
amount of money expended for school books in this State, es- 
pecially since many widely divergent estimates and statements 
on this subject have been given to the public. So far as the ele- 
mentary schools are concerned the sworn figures of the dealers 
are to the effect that the total sales for the regular adopted texts 
during the past ten years are a little less than $150,000 annu- 
ally. Some effort has been made to check these figures and there 
were selected for this purpose the counties of Habersham, Schley, 
and Early and the figures given appear to corroborate the pre- 
vious conclusion. Not only so, but testimony has been secured 
from the country as a whole, other states, and cities at this 
point. The report of the United States Commissioner of Edu- 
cation shows twenty millions of pupils in the schools of this 
<30untry and the total expenditure of not quite seven mil- 
lion dollars for school books (Volume II, 1912, page 
17), thus confirming the Georgia figures. In Pennsylva- 
nia, for instance, the books are bought by Boards of Edu- 
cation and furnished free to the children; the law there 
requires under such circumstances, a complete report of the 
cost of the books thus furnished. Since the books are free any 
variation would naturally be that more of books would be used 
and the expenditure would be correspondingly greater in Penn- 
sylvania than in Georgia, to say nothing of the fact that the 
former state is larger and has more per capita wealth. State 
Superintendent, N. C. Schaeffer, gives the enrollment of pupils 
in Pennsylvania, for the year ending June 30, 1913, as 1,343,055 
and the cost of text books for these pupils as $1,157,930.27. The 
average cost per pupil in that State is, therefore, 86.2 cents; 
note also that the Pennsylvania law requires free books furnish- 
ed for high schools and normal schools. High school books are 
always more expensive. It is plainly true, therefore, that the 
cost of books for the elementary grades in Pennsylvania as well 
as Georgia would be much less than 86 cents per capita each 
year. Furthermore, another proof as to the cost comes from 
our own State. The City of Fitzgerald has for some years been 
furnishing the text books free to the pupils. Superintendent 

12 



Ritchie writes that the cost for that city for 1913 was less than 
74 cents per capita and regretfully we know that it is much 
less than this on the average for the country child, just as in- 
dicated by the figures noted above by the dealers. The City 
Boards of Education are always more insistent upon a liberal 
supply of books and other educational material for their pupils 
— some, perhaps, with not enough attention to economy. It is 
true, however, that there is much loss to the child from error in 
the opposite direction and that the argument is decidedly in 
favor of taking into consideration the value of his time and the 
necessity for furnishing him with proper tools with which to 
work. It is poor reasoning to prefer a saving of 5 cents on an 
inferior text book on which a child must spend 6 months of time 
to a better one even at a greater cost. 

STATE PUBLICATION BY THE CALIFORNIA PLAN 

Of the 48 States in this country, 46 use either the Georgia 
plan, authorize the purchase by Boards of Education, or else do 
not interfere at all in the purchase and supply of text books. 
Two, however, Kansas recently, and California for 30 years 
past, have undertaken to establish plants and to print books 
used by the State. In the message of Governor "W. Y. Atkinson, 
of Georgia, to the General Assembly in 1897, giving the report 
of the School book Commission at that time, the following oc- 
curs: 

"California is the only State that has undertaken to pub- 
lish its own books. The experiment has cost the State, accord- 
ing to the late report of the Secretary of State, something like 
$1,700,000. Deducting the estimated value of the manufacturing 
plant, material on hand, plates or books which have been con- 
demned as educationally worthless, and the stock on hand of 
the same books, finished and unfinished, all being valued in the 
report at $348,701, we find the net cost to the State of the school 
book enterprise has been $1,351,299 ; so that the interest on the 
$1,351,299 invested at six per cent, would furnish books prac- 
tically free to all the children of California." 

Since this date, after much trouble, conditions have been 
pronounced more favorable and the expense of publishing and 
distributing these State made books has been lessened. It seems 

13 



beyond doubt, however, that during the years during which Cal- 
ifornia has been manufacturing her own school books that the 
following may be fairly stated as the result: 1. The cost to 
the parent of the books made by California, all things consid- 
ered, has not been upon an average, cheaper than the Georgia 
texts; 2. It is only just to state that there has always been 
considerable question, expressed sometimes even by the Califor- 
nia people themselves, as to the quality of their books ; 3. It is 
beyond doubt true that these California texts are inferior from 
the standpoint of paper, print, and binding — this fact is appar- 
ent even to the careless observer. That we might have the bene- 
fit of professional skill at this point, however, at some consider- 
able difficulty, there has been secured a number of these books. 
They were submitted to the State Printer, Mr. Chas. P. Byrd, 
and he was asked to give his opinion of these texts from the 
mechanical side. His letter speaks for itself : 

Atlanta, Ga,, April 2, 1914. 

Complying with your request, I have examined the books printed by 
the State of California and those furnished under your adoption. I find 
the California books are decidedly inferior as to the material and con- 
struction, and the matter is one of contrast rather than of comparison. 

My information is that the State of California has appropriated over 
a million dollars on a plant to do this work, which in my opinion is more 
than is necessary for such an equipment. The only solution to the problem 
is the fact that it takes more than a printing office to produce satis- 
factory school books. Experience in handling this particular class of 
work is an essential element which appears to have been lacking in the 
California books. 

This answers your inquiry in a general way; if you wish me to be 
specific in the matter, covering in detail the difference between the 
books submitted, I will do so. 

Trusting this will meet your requirements, I am, 

Very truly, 

(Signed) CHAS. P. BYRD. 

It may be added that these books are in the State Depart- 
ment of Education, where members of the General Assembly 
may see them at any time. 

Even now, with all the experience of that State and with the 
best efforts of the most successful State Printer they have ever 
before secured, F. W. Richardson, the basal books for the public 
schools do not seem to be able to be placed in the hands of the 

14 



children of California much cheaper than with us, to say noth- 
ing whatever of the salaries of the officials, the enormous sum 
invested in the printing plant, and the waste of unsatisfactory 
books which have been made and thrown away. From the office 
of the State Superintendent of Schools of California, Edward 
Hyatt, the expense of manufacturing, plus distribution of these 
basal books is given as follows : 

Primer $ .20 - Geography, 2 books $1.05 

First Eeader 20 History, 2 books 90 

Second Eeader 25 Agriculture, no text 

Third Eeader 25 Physiology 25 

Fourth Eeader 30 Civics 40 

Fifth Eeader 30 Spelling, 2 books 40 

Arithmetic. 2 books .55 Writing, 5 books 25 

Grammar, 2 books 65 

Total, $5.95; note that there is no text in Agriculture, only 2 in 
History, and 5 in writing. With the text in Agriculture added, one in 
History and 2 in Writing the total would be $7.25. These prices do not 
take into consideration the deterioration of the plant, interest on money 
invested and possibly some of the salaries of officials, etc.; neither do 
patrons have the benefit of exchange price. It is proper to state that 
California has adopted free text book legislation. This does not alter 
the fact, however, that the expense is the same and must be defrayed 
by the tax payer, even if it is removed from his shoulders under another 
name. 

KANSAS 

Kansas has so recently begun with the experiment of State 
publication that we can learn little from that State. The last 
Legislature made an appropriation of $225,000 — $50,000 of which 
was set apart for artists, authors, compilers, etc., leaving $175, 
000 to enlarge an already established printing office for the pub- 
lication of school books. The first book to be published is a 
Primer; and $2,000 was paid to the author for the manuscript 
which the Text Book Commission purchased as the official Prim- 
er to be used in the schools of the State during the next five 
years. In addition to this, illustrations for the text will cost ap- 
proximately $2,500. The second text selected was a history, or 
as the Kansas City Journal terms it, "A Historical Novel, ' ' for 
the manuscript of which $3,000 was paid to the author and $500 
additional to other persons for revision. The Teachers' Asso- 
ciation of Kansas has requested that the School Book Commis- 

15 



sion discontinue its work, temporarily at least, until the Legis- 
lature shall have assembled again for the reconsideration of the 
question. One of the school officials of that State, writes as 
follows : "It seems reasonable to believe that a publishing con- 
cern whose principal business is the selection and publication of 
books is better prepared to handle the business more successfully 
than a State which has so many other matters of importance to 
deal with." It will be seen, therefore, that from the situation 
in this State it is difficult to secure much argument, as yet at 
least, to authorize the creation of a printing plant and the pub- 
lication of school books by the State. 

THE ONTARIO PLAN 

More frequently than any other, however, what is known as 
the Ontario plan has been advanced as the best and most eco- 
nomical for this State. Its history is interesting. The Cana- 
dians found that there was a tendency on the part of their 
teachers and parents to use the books published by their great 
neighbor, the United States. The subject attracted attention, 
more than 60 years ago. 

It was clear that these books were fostering our ideas of li- 
berty and even causing rebellious sentiment against British rule. 
To counteract this, books had to be made by Canadians or, at 
least, by English subjects. They began first with the Irish Nation- 
al Series and naturally the present forced use of British and Ca- 
nadian texts, no matter how inferior to those published by the 
United States, has followed. In 1868 and in 1894 the contract 
for readers, for instance, was given to Canadian Publishing 
Companies. The Whitney Government in 1907, stating that 
the Ontario text books were inferior to those of similar grade 
in this country, authorized the Minister of Education to secure 
an editor with power to have texts prepared, electroplates made 
and books printed by contract. The department store of T. 
Eaton Company, Limited, which has a printing plant for its 
large mail order business, was the lowest bidder. The offer was 
to furnish the Primer and the first four Readers at a total cost 
of 49 cents. Without sajang anything as to the quality of these 
books, although educational experts have been practically a unit 
in pronouncing them inferior to our own texts, it is a fact easily 

16 



ascertained that they are able to be sold at so low a price be- 
cause of two reasons : first, a part of the expense is borne by the 
Government and second, another part by the department store 
for the sake of the advertising. 

The same thing is true with regard to certain others of the 
Ontario books, particularly the arithmetic furnished by the Rob- 
ert Simpson Company, Limited. Some of the books, however, 
are printed by regular publishing companies and undoubtedly 
with little, if any, help from the advertising idea already men- 
tioned. 

In the endeavor to learn what would be the cost, under our 
conditions of certain basal books, letters were written to pub- 
lishers in this country and in Ontario, as the following corre- 
spondence shows: 

Atlanta, Ga., March 5, 1914. 

FOOTE & DAVIES COMPANY, 

Atlanta, Georgia. 
Gentlemien: I shall appreciate the favor if you will kindly write me at 
what prices you could furnish the State, upon a five-year contract, in 
lots of 10,000 as desired, the following books copies of which are sent 
herewith: 

Practical Primer, Wientworth's Elementary Arithmetic, Graded 
Literature Fifth Eeader, Peterman 's Civil Government, and Berry 's 
Copy Book, Number 5. 

You will understand, of course, that these bids are to be made solely 
upon the basis of the manuscripts being furnished by the State and that 
the cost of distribution is not being considered. 

REPLY ONE. 

Replying to yours of the 5th, we estimate that to produce the books 
you desire would cost about as follows: 

Practical Primer, 12% cents. 

Wentworth's Elementary Arithmetic, 23% cents. 

Graded Literature Reader, Book V, 22% cents. 

Peterman 's Civil Government, 18% cents. 

Berry's Copy Book, 5 to 7 cents. 

It is hard to estimate on the copy book very closely, as it is made 
up in a rather difficult way, having two colors of ruling and the printing 
is of a special character, which would vary the estimate somewhat. 

Trusting this is satisfactory, we are, 

Yours truly, 

(Signed) FOOTE & DAVIES CO. 

17 



REPLY TWO. 

Eeplying to your favor of March 5th, we beg to hand you herewith 
an approximate estimate on 10,000 copies of each of the books named, 
based upon the manuscript and all necessary cuts being furnished by the 
State: 

Practical Primer, 12 cents. 

Wentworth's Elementary Arithmetic, 20 cents. 
Graded Literature Eeader, 22 cents. 
Peterman's Civil Government, 20 cents. 
Berry's Copy Book No. 5, 5 cents. 

These prices contemplate an exact duplicate of the books submitted 
as to material and workmanship. 

Trusting this information will serve your purpose, we are. 
Very truly yours, 
(Signed) BYED PRINTING COMPANY, 

C. P. Byrd, Prest. 
REPLY THREE. 

We are in receipt of your favor of the 13th inst. and have to-day 
received the following school books. Common School Speller, Essential 
Facts of American History, Agriculture, Practical Primer, History of 
Georgia. 

We have also read over your typewritten sheets but are not very 
clear about some of the details. Do we understand that the State of 
Georgia intends preparing new text books to take the place of those 
sent to us? Or has the State the copyright of any or all of these 
books? You, of course, will readily understand that we could not print 
and publish any of the text books sent to us without we had control of 
the copyright and all of these books, we understand, are copyrighted 
in the United States. 

Another point would be in connection with the preparation of 
electroplates for printing these books. Some of them particularly the 
History, Agriculture, and Primer, have many illustrations. The illus- 
trations could not be copied by another publisher without the consent 
of the original owner of the pictures. 

These difficulties do not arise in the case of books published by our- 
selves where we own the copyright; for example, Ontario Public School 
Speller of which we sent you some copies some time ago. As we own 
the copyright on this book we could easily arrange to supply your 
schools with this book and could adapt it to the use of your schools if 
necessary under a contract. We could not however reprint your Common 
School Speller without consent of the owner of the copyright. 

If you will kindly reply giving us further light on these points we 
will be glad to take up the matter again. 

Yours truly, 

(Signed) A. W. THOMAS, 

Secy.-Treasurer. 
THE COPP CLARK COMPANY, Limited, 
Toronto, Canada. 

18 



Atlanta, Ga., March 23, 1914. 

Gentlemen: In reply to your letter of March 19: 

This state has not decided to prepare and publish new school books. 
There is, however, a committee of investigation appointed to look into 
the matter and to report to the Legislature about the cost of texts and 
to take into consideration the matter of state publication. The purpose 
of sending you the five books mentioned is to learn from you what you 
will prepare and publish texts similar to these, you preparing the elec- 
troplates, illustrations, etc. We do not, of course, intend for you to 
reprint these particular books unless we secure this right from the 
authors. Our purpose, however, is merely to find out from you what 
it will cost to do similar work. If you will, therefore, estimate this 
expense and send it to me it is our intention to calculate the cost of 
distribution in this state and to compare these figures with the present 
prices paid in order that we may report more intelligently upon this 
matter to the Legislature. 

With the hope that you will do us the favor of furnishing these figures 
and remembering with appreciation the courtesies shown me last August 
when I was in your office with the view of learning personally of these 
facts, I am, 

Very truly yours, 

M. L. Brittain, 
State Supt. of Schools. 

SECOND EEPLT. 

Your favor of the 23rd inst. to hand. With reference to the question 
of preparing estimates for the five books you sent to us we would say 
that it would be a long and tedious matter to prepare an estimate that 
would be anything like accurate for these books and after these estimates 
were furnished they would be little use to you if you thought of pre- 
paring new books as the new books in all probability would be different 
in size and contents and the prices would consequently vary. We 
hardly like therefore to go to the expense and trouble of working up 
these estimates in view of the uncertainty of their being of any particular 
value either to you or to ourselves. 

We think the better way to meet this matter is for us to send you 
specimens of the books that we are now making in Ontario with a list 
of the retail prices and net amount received by us for each book. This 
will give you an indication of what we would be prepared to publish 
similar books for yourself. In case of one of the books, namely, the 
Ontario High School Composition, the plates were supplied to us without 
charge by the Ontario Education Department, in all the other cases we 
were at the expense ourselves of preparing the plates both for matter 
and illustrations. We would say that the drawings used in the Ontario 
High School Physics cost several thousand dollars to prepare. Thirf 
will explain to some extent the comparatively high price received for 
this book. 

19 



The following table shows the name of the book, the retail price, the 
net price to the trade, the royalty, and the net price received by us for 
each book: 

Net Amount 
Retail Trade Eeceived 

Price Price Royalty by us 

H, S. English Composition $ .18 $ .14 4-10 $ $ .14 4-10 

P. S. Composition 15 .12 .Oiy2 -lOVa 

P. S. Speller 15 .12 .01^ .10y2 

P. S. Hygiene 20 .16 .02 .14 

H. S. French Grammar 60 .48 .06 .42 

H. S. Physics 90 .72 .09 .63 

In any comparison of prices regard must be had of the number of 
pages and the number of styles of illustrations. The following tablfr 
will give you an idea of this matter for each book. 

H. S. English Composition, 288 pages. Few illustrations. 

P. S. Composition, 204 pages. Few illustrations. 

P. S. Speller, 204 pages, No illustrations. 

P. S. Hygiene, 248 pages. Many illustrations. 

H. S. French Grammar, 316 pages. No illustrations but very expensive 
type setting. , 

H. S. Physics, 504 pages. Many expensive illustrations. 

Should the matter ever get so far that you would like us to estimate 
on new, books for your State and there was any prospect of our being 
awarded a contract we would be glad to go into the matter carefully 
and would be prepared under satisfactory conditions to make a contract 
with your State for a period of years. 

Yours truly, 
(Signed) THE COPP CLARK COMPANY, Ltd. 

A. W. Thomas, Secretary-Treasurer. 

REPLY FOUR. 

Toronto, Canada, April 16, 1914. 

Your letter of March 30 was duly received, and we note w^hat you say 
regarding the awarding of contracts. Under the circumstances we do 
not care to give quotations. 

We regret very much the delay in replying to your letter. 
Yours truly, 
(Signed) THE T. EATON COMPANY, Limited. 

J. J. Vaughan, Secretary. 

It will naturally occur to any thoughtful mind as strange 
that the Ontario System was not adopted by New York and 
Ohio if it were so far superior to our own as is frequently as- 
serted. The thirteen million inhabitants of these two of our 

20 



most progressive northern States are not generally suspected of 
being willing to pay more for school books or anything else than 
might be necessary and reasonable. The impression is somewhat 
more than a suspicion, and indeed is quite general, that these 
are the most astute and economical business men we have in the 
country. They are separated only by the St. Lawrence River 
and Lake Erie from Ontario; trains and boats cross from one 
side to the other every hour and there is continuous communica- 
tion. This has been going on during all these years while On- 
tario has been making her own school books and what these near 
neighbors and countrymen of ours have never even thought 
worthy of imitation or consideration, is not likely to be so won- 
derfully to the advantage of those of us a thousand miles away, 
who were stirred to action by a sensational newspaper article in 
the Saturday Evening Post. 

As information, the cost at which these Ontario elementary 
books are furnished is given : 

GBAMMAB GEADES. 

Pirimer $ .04 Geography $ .65 

First Header 06 History, 2 books .50 

Second Eeader 09 Agriculture, no text 

Third Eeader 14 Physiology i' . . .20 

Fourth Eeader 16 Civics, no text 

Fifth Eeader, no text Spelling .15 

Arithmetic 10 Writing, 5 books 10 

Grrammar 10 

Total, $2.29; note that there is no Fifth Eeader, no text in Agriculture, 
no text in Civics, only 1 in Grammar, 1 in Geography, 1 in Spelling, 2 
in History, and 5 in Writing. 

HIGH SCHOOL GEADES. 

- Arithmetic $ .40 Chemistry and Manual $ .60 

Algebra 50 Ancient History 75 

Geometry 40 Physical Geography 60 

Latin Book 60 Blank Drawing Book 05 

German Grammar 70 Bookkeeping 30 

English Composition 18 Physics 90 

French Grammar 60 

These books are on file at the State Department of Education 
and accessible to any one who may desire to compare them with 

21 



the books used in this country. As a rule, they appear to the 
ordinary observer as clearly inferior to the United States texts 
and all the experts to whom they have been submitted with one 
exception, agree that this is true with regard to the workman- 
ship and material used. 

SUMMARY 

'Summarizing for your convenience, therefore, our answers 
to the questions which we were asked by you to secure are as 
follows : 

First. Compared with the prices paid for similar books in 
other States in this country, the cost in Georgia is not only 
reasonable but actually considerably less than the average paid 
in the other forty-seven commonwealths of this Union. 

Second. The California plan, which involves the purchase 
and equipment of a printing plant, managed by State officials, for 
the purpose of printing State school books, does not appear to 
be desirable for Georgia. 

Six members agree to the foregoing : 
M. L. Brittain, 
J. T. Peyton, 
H. C. Shuptrine, 
W. J. Nunnally, 
G. R. Glenn, 
T. J. Woofter. 
Five members of the Committee, namely, Messrs. J. T. 
Peyton, H. C. Shuptrine, "W. J. Nunnally, G. E. Glenn, and T. J. 
Woofter sign the following as the third and closing recommen- 
dation : 

Third. "We would not recommend the publication of our 
school texts by the Ontario plan. 

Chairman M. L. Brittain presents the following modification 
of this third and final recommendation: 

It does not certainly follow, that the defects of the Ontario 
plan would apply with all school texts. While no one, who has 
looked into the question with any care, will expect to secure a 
Primer or Reader of any value at a cost of four or five cents, un- 
less the difference between this and its real cost is furnished by 
the State through general taxation, or a business concern for the 
sake of the advertising, it is desirable that the State should test 
this matter and see if any saving can be made to its citizens. I be- 
lieve this is possible in some instances with no loss as to 

22 



quality and that we should have the benefit of this possibility 
without heeding reckless agitators or commercial interests. 
Certain books have what might be termed, "Local Coloring." 
If we can make any to advantage, these are the texts that would 
present least difficulty and that would offer greatest chance for 
success. Such, for instance, is the State Civil Government. It 
is more than likely that a book of this kind can be ''made to 
order" with more chance of success than such a text as a 
geography which requires experts of nation-wide reputation for 
skill and ability. 

Since the State ought to be given the opportunity of testing 
the matter as completely as possible, I recommend also that the 
State Department of Education be authorized to rent or lease 
plates and manscript and print one other text, such as may be 
deemed advisable, of the common or high school books, 
through competitive bids by publishers. This wiU not force 
Georgia into an expensive change until the matter shall 
have been thoroughly tried out, by both methods, and informa- 
tion is secured not only as to the cost of publication but also of 
the expense of distribution, a factor frequently unconsidered, 
but very important in this question. Any business man would 
certainly take such a course, and the expense required is small 
compared with the possible good that may result from the prac- 
tical test of these two plans or the harm that might accrue from 
crude and revolutionary change in the present uniform text book 
legislation. 

DISSENTING REPORT 

I beg leave to file a minority report as follows : 

I find for a number of years when the school books were 
adopted under the County Sj'^stem, that the prices obtained un- 
der that system were much higher than under the system of 
State adoption. 

I further find that practically as good texts were secured un- 
der State-wide adoption for the common schools as those in use 
before said adoption. 

I further find from the evidence submitted, that it is possible 
to have printed and distributed to the school children of Geor- 
gia, school books at prices lower than at present charged. 

23 



I find that we can secure texts for the books hereinafter 
named by employing experts or under competition; or upon a 
royalty basis as good texts as are now in use in our schools. 

I find that other countries under the system of having some 
of the books edited by expert service and having them printed 
by competitive bids, have produced the Readers and five other 
books at less than one-half of what the children of Georgia are 
now paying. 

I find that sufficient evidence has been submitted to our con- 
sideration to authorize us to recommend that the texts for the 
following books be secured by the State Board of Education un- 
der the direction of our State School Superintendent as follows : 

A Civil Government. 

A Complete set of Copy Books. 

A Primary History of the United States. 

Such Readers as the Board of Education may approve. 

That the texts of these shall be secured by securing expert 
service, or under competition, or on a royalty basis. 

That these books shall be printed by competitive bids under 
a contract for at least five years for printing, binding and dis- 
tribution of the same, and shall be sold to the children of Geor- 
gia at actual cost. 

C. R. McCrory. 



Note. By reason of illness Vice-Chairman Foster was unable 
to be present at the final meeting of the Committee. 




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